cbrne strategy for canada

Chemical, Biological, Radiological, Nuclearand Explosives Resilience Strategy for Canada

January 2011

© Her Majesty the Queen in Right of Canada, 2011

Cat. No.: PS4-19/2011E-PDF

ISBN: 978-1-100-17623-9

Printed in Canada

Chemical, Biological, Radiological,Nuclear and Explosives

Resilience Strategy for Canada

Table of Contents

Executive Summary ..................................................................................................................................................1

Strategic Context......................................................................................................................................................1

International Partnerships.........................................................................................................................................2

Background ..............................................................................................................................................................3

Purpose ....................................................................................................................................................................3

Observations.............................................................................................................................................................4

Governance ..............................................................................................................................................................5

Scope.................................................................................................................................................................5

Accountability...........................................................................................................................................................6

Strategic Objectives ..................................................................................................................................................7

1. Provide leadership for coordinated policy and program development..........................................................8

2. Integrate CBRNE into an all-hazards risk management approach ................................................................8

3. Use capability-based planning to inform policy, program and investment decisions ....................................8

4. Build an effective and interoperable workforce ............................................................................................9

5. Optimize information and knowledge management.....................................................................................9

Implementation ......................................................................................................................................................10

Review....................................................................................................................................................................10

Glossary..................................................................................................................................................................11

Acronyms................................................................................................................................................................17

CHEMICAL, BIOLOGICAL, RADIOLOGICAL, NUCLEAR AND EXPLOSIVES RESILIENCE STRATEGY FOR CANADA 1

Executive Summary

The threat of chemical, biological, radiological, nuclear

and explosives (CBRNE) events is a global challenge.

Terrorist attacks are increasingly focused on western

interests and Canada has been specifically identified as

a target by terrorist organizations. Canada is also at risk

from domestic sources such as radicalized individuals,

extremists and criminals. This threat, aggravated by the

prevalence of potential CBRNE materials normally used

for industrial and scientific purposes, requires

coordinated action by many contributors.

In order to enhance and sustain Canada’s resilience to

CBRNE events, all levels of government within Canada

have collaborated to develop the Chemical, Biological,

Radiological, Nuclear and Explosives Resilience Strategy

for Canada (hereafter referred to as “The Strategy”). Its

purpose is to provide the policy framework that will

guide the creation of sustainable capabilities and

common standards in CBRNE policies, programs,

equipment and training.

The Strategy promotes the vision of an integrated

capability across Canada by framing a scalable,

responsive, dynamic, sustainable and evidence-based

approach for all contributors to CBRNE events. This

approach is equally based on the Four Components of

Emergency Management: prevention / mitigation,

preparedness, response and recovery.

The Strategy is based upon five key strategic objectives

that have been agreed upon as fundamental if Canada is

to achieve sustainable resilience to the risks and threats

of CBRNE events. They are:

1. Leadership - to guide coordinated policy and

program development by all levels of government

and contributors that will foster and promote

CBRNE resilience;

2. Risk Management - to integrate CBRNE into a

consistent all-hazards risk management approach,

including robust hazard, vulnerability and risk

assessment methodologies;

3. Capability-based Planning - to inform policy,

program and investment decisions based on the

principles of capability-based planning.

4. Effective and Interoperable Workforce - to build

an effective and interoperable workforce that is

supported by a modern, dynamic and responsive

training infrastructure backed up by appropriate

technologies; and

5. Information and Knowledge Management - to

develop effective information, knowledge and

intelligence managements systems and mechanisms

across all jurisdictions and contributors.

An Action Plan, which is an integral part of this Strategy,

sets out actions and timelines for CBRNE programs and

activities over a five-year period. The Action Plan is

based on the five strategic objectives. Efforts in support

of the Action Plan identify and strengthen the

capabilities across Canada to prevent / mitigate, prepare

for, respond to, and recover from CBRNE events.

All levels of government will work collaboratively to

monitor the implementation of the Strategy and Action

Plan. Together, these efforts will enhance CBRNE

resilience in Canada.

Strategic Context

The consequences of natural and human-induced

hazards and disasters have become more widespread

due to increasingly urbanized and globally-

interconnected societies. The threat and risk posed by

chemical, biological, radiological, nuclear and explosives

(CBRNE)1 events is a global challenge. As Canada

operates within the international community, it is not

2 CHEMICAL, BIOLOGICAL, RADIOLOGICAL, NUCLEAR AND EXPLOSIVES RESILIENCE STRATEGY FOR CANADA

immune from world events which could have a profound

effect on the Canadian economy, society, and way of life.

The terrorist events of the last decade changed

perceptions and priorities with respect to international

threats and risks. Terrorist attacks are increasingly

focused on western interests and Canada has been

specifically identified as a target by terrorist

organizations.2 Canada is also at risk from domestic

extremists, radicalized individuals, and criminals.3

The prevalence of CBRNE materials in Canadian society

for use by industry, in scientific research and medical

diagnostics, among other purposes, creates a significant

risk of diversion or exploitation by terrorists or criminals.

Terrorists have used CBRNE materials in the past, and

evidence indicates that they continue to be active in

pursuing and acquiring such materials.4

Coordinated investments to improve Canada’s activities

in advance of, during, and after CBRNE events, based on

risk assessments, are a key component of developing

national resilience to such events. Resilience in the

context of this Strategy refers to Canada’s capacity to

adapt to CBRNE hazards before, during, or after a

CBRNE event in order to reach and maintain an

acceptable level of functioning.5

International Partnerships

In today’s complex global environment, Canada must

invest in its relationships with international partners in

order to facilitate the exchange of information and

intelligence, enable mutual assistance and scientific

cooperation, and counter the proliferation of CBRNE

materials.

Participation in selected international fora, such as the

United Nations (UN), the North Atlantic Treaty

Organization (NATO), the Group of Eight (G8), the

Quadrilateral Group on CBRN Counter-Terrorism, the

Global Health Security Initiative (GHSI), Regional

Emergency Management Advisory Councils and other

bilateral and multi-lateral partnerships is essential to

Canada’s national security and global stability. NATO has

developed a strategic level policy on CBRN6 which helps

inform this Strategy and through it, Canadian activities.

The risk of proliferation of CBRNE materials further

complicates the international security environment in

which Canada operates. In recognition of the threat of

terrorists gaining access to Cold War-era weapons and

materials of mass destruction, the G8 launched the

Global Partnership Against the Spread of Weapons and

Materials of Mass Destruction under Canada's

leadership. Canada also participated in the recently

completed UN review of the Nuclear Non-Proliferation

Treaty (NPT) and the Global Initiative to Combat Nuclear

Terrorism. Additionally, Canada is a signatory to the

Biological and Toxin Weapons Convention (BTWC), the

Chemical Weapons Convention (CWC), is a signatory to

1 See definition of “CBRNE Event” in the Glossary.2 Canadian Security Intelligence Service, April 2008. Available at http://www.csis-scrs.gc.ca/prrts/trrrsm/xmpls-eng.asp3 National Security Policy, Government of Canada, April 2004.4 For example, the Sarin gas attacks on the Tokyo Subway system by the Japanese cult Aum Shinrikyo in 1995 or the Anthrax letter attacks within

the United States in 2001. For an example of a document referencing terrorist use of CBRNE materials, see the Final Report of the NationalCommission on Terrorist Attacks upon the United States, United States Government Printing House, July 2004.

5 See definition of “Resilience” in the Glossary.6 NATO’s Comprehensive, Strategic-Level Policy for Preventing the Proliferation of Weapons of Mass Destruction (WMD) and Defending against

Chemical, Biological, Radiological and Nuclear (CBRN) Threats, September 2009.


the Convention on the Physical Protection of Nuclear

Material, and supports the Code of Conduct on the

Safety and Security of Radioactive Sources.

Canada is committed to complying with its international

commitments on CBRNE and will continue to be a leader

amongst its international partners in managing the

global CBRNE threat.

Background

In 2005, the federal government released The Chemical,

Biological, Radiological and Nuclear Strategy of the

Government of Canada.7 This strategy served as

important guidance towards fulfilling the federal

government’s responsibilities with respect to CBRN

events. As most emergencies in Canada are local in

nature and are managed at the municipal or provincial /

territorial (P/T) level, the activities of those levels of

government are integral to a national CBRNE strategy.

Based on this foundation, the present national strategy

expands on the 2005 federal strategy by including the

responsibilities of all levels of government.

In 2007, a national roundtable on CBRNE terrorism

brought together first responders, policy makers and

Federal, Provincial, Territorial (F/P/T) government officials

to discuss a comprehensive, coordinated, and national

approach to dealing with CBRNE events.

As a result of this roundtable, the Senior Officials

Responsible for Emergency Management (SOREM)8

created, in early 2008, an F/P/T sub-working group to

assist in the development of a national CBRNE strategy.

Within this context, F/P/T governments have been

working together to define a comprehensive and

integrated Canadian framework that identifies and

strengthens CBRNE capabilities and processes in the

context of complex emergencies.

The CBRNE Research and Technology Initiative (CRTI),

was launched by the federal government in 2002 as part

of its security agenda. The CRTI program has proven to

be an effective model for bringing together Canada's

national science and technology (S&T), security, and

consequence management communities and applying

their collective knowledge and capabilities towards

common goals. Through this collaborative, coordinated

initiative, the federal S&T community and its partners

are working to enhance Canada's capability and

capacity to prevent, prepare for, respond to and recover

from CBRNE events.

Purpose

The purpose of the Chemical, Biological, Radiological,

Nuclear and Explosives Resilience Strategy for Canada

(hereafter referred to as “The Strategy”) is to provide

the policy framework that guides the creation and

maintenance of sustainable capabilities, common

standards and steers investments in CBRNE policies,

programs, equipment, and training in a common

direction. This will take place in the context of complex

emergencies, across the four components of emergency

management:9

� Prevention / Mitigation� Preparedness� Response� Recovery

7 The “Explosives” (E) component was not part of The Chemical, Biological, Radiological and Nuclear Strategy of the Government of Canada. Seedefinition of “CBRNE” in the Glossary. The complete text of this strategy can be found at: http://www.publicsafety.gc.ca/pol/em/cbrnstr-eng.aspx

8 See definition of “SOREM” in the Glossary.9 See definition of “Emergency Management” in the Glossary.


In order to be effective, efforts to build CBRNE resilience

must span all four of these components in a

comprehensive, balanced, and ongoing fashion. The

Strategy recognizes that taking preventative actions in

advance to address CBRNE threats and risks will help to

prevent and reduce the effects of future CBRNE events.

The Strategy supports the vision of a comprehensive and

integrated capability, across Canada, which ensures

sustainable resilience to the threats, risks and potential

consequences of CBRNE events. This vision was created

collaboratively by F/P/T contributors in late 2008.

The Strategy frames a scalable, responsive, dynamic,

sustainable and evidence-based approach for

contributors10 to CBRNE events, which takes into

account the changing nature of the threats,

vulnerabilities, and the varying contributions and

capabilities related to CBRNE events in Canada.

The Strategy enhances timely and effective decision-

making through improving integration, coordination and

interoperability amongst CBRNE contributors from plans,

to standard operating procedures, to equipment and/or

training. The Strategy is designed to work in conjunction

with existing jurisdictions and mechanisms, such as the

Federal Emergency Response Plan (FERP), the National

Emergency Response System (NERS), the Federal Nuclear

Emergency Plan (FNEP), the National Counter-Terrorism

Plan, and F/P/T/M response plans. Provincial / territorial

and regional response arrangements are also included.

The FERP is the key federal response plan. It outlines the

processes and mechanisms to facilitate an integrated,

“all-hazards” federal response to an emergency and to

eliminate the need for individual departments to

coordinate a wider Government of Canada regional or

national response. The NERS is included as an annex to

the FERP, and articulates how provincial / territorial

governments will link to the FERP, and how the federal

government will supports provincial and territorial

emergency response when needed. Both of these

documents provide guidance to all levels of government

in dealing with the response to CBRNE events that

exceeds local, regional, provincial, or territorial capacity

or capabilities.

The Strategy recognizes Canada’s integrated approach

to dealing with the threat of domestic and international

terrorism. This approach is based on four mutually

reinforcing elements: prevent individuals from engaging

in terrorism; detect the activities of individuals who may

pose a terrorist threat; deny terrorists the means and

opportunity to carry out their activities; and respond

proportionately, rapidly and in an organized manner to

terrorist activities and mitigate their effects. These

security-focused activities form an integral part of the

wider all-hazards emergency management approach

based on the Four Components of Emergency

Management.

Observations

Diversity: Based on capabilities, capacities and

priorities, the actions taken may vary from one

jurisdiction to another.While the Strategy assumes a

base level of consistency and commonality in

jurisdictional actions, specific solutions that are

appropriate in one jurisdiction may not be applicable or

appropriate in another.

Authority: In the event of a complex CBRNE event

in Canada, there is no single agency at any level of

government that has the required authority and

expertise to act unilaterally. In many cases, a CBRNE

10 See definition of “Contributors” in the Glossary.


event will cross jurisdictions and will require regional or

national coordination amongst contributors in addition

to a well-defined transition between security measures

and consequence management measures.

Time and Space: Risks, circumstances, and

consequences of CBRNE events vary geographically and

over time. A CBRNE event may produce major

consequences that could quickly overwhelm response

capabilities, particularly if multiple locations are

affected; or if impacts are progressive or prolonged.

Such an event can have implications on national

security, public safety, public confidence, the economy,

the environment, and international relations.

CBRNE and Hazardous Materials: The

Strategy recognizes the integral relationship between

hazardous materials response (HazMat) and CBRNE

response that has been established over time.

Resources and assets applied to the management of

CBRNE events are made up, in part, by personnel and

equipment used for HazMat events. HazMat is one of

the core capabilities required to respond to CBRNE

events, and is therefore reflected in this Strategy.

Governance

Scope

The Strategy provides guidance to all who would be

called upon to prevent / mitigate, prepare for, respond to

and recover from complex CBRNE emergencies. It

recognizes that there are differences in the specific roles

and tools used in particular circumstances by all

contributors. Contributors include all levels of

government; first responders; first receivers; healthcare

and public health professionals; hospitals; coroners; the

intelligence community; specialized resources, including

scientific and Urban Search and Rescue (USAR)

resources; the military; law enforcement agencies; non-

governmental agencies; private sector contributors and

the academic community. All of these contributors are

expected to work collaboratively to implement the

Strategy in a comprehensive and cost-effective manner,

and where applicable, leverage existing programs and

initiatives.

The Strategy recognizes that there are shared

responsibilities and contributions across various levels of

Government, sectors and specializations for CBRNE. The

Strategy respects each government’s jurisdiction and

legal frameworks, and does not derogate from this

authority. Contributors are encouraged to develop and

coordinate their own strategies and action plans to

implement this Strategy, but may take action on this

Strategy directly in the absence of jurisdictional

strategies or plans. In this way, jurisdictional CBRNE

strategies, action plans and activities contribute to

building national CBRNE resilience in an integrated

fashion.

This Strategy does not intend to be prescriptive or to set

any priority order across those areas of shared

responsibility. Nevertheless, it is crucial to the success of

this Strategy that each jurisdiction ensures that the

requisite sharing of information, consultation, and

determination of specific roles, responsibilities and

contributions is undertaken.

Emergency management is a shared responsibility and a

component of a sustainable, prosperous and disaster-

resilient society. The Strategy is predicated upon the

principles outlined in An Emergency Management

Framework for Canada.11 This Framework was approved

by F/P/T Ministers Responsible for Emergency

11 The complete text of the Framework can be found at: http://www.publicsafety.gc.ca/prg/em/emfrmwrk-eng.aspx


Management to guide and strengthen the way

governments work together to protect the safety and

security of all Canadians. These principles reflect the

essence of emergency management in Canada and

frame the key underlying beliefs and goals of emergency

management. They aim to support the design,

implementation and ongoing improvement of

frameworks, programs, procedures, guidelines and

activities, which taken together comprise the emergency

management systems of Canada.

Accountability

It is the responsibility of SOREM to ensure the overall

implementation of the Strategy on behalf of the Deputy

Ministers and Ministers Responsible for Emergency

Management.

This Strategy recognizes that the SOREM lead for each

jurisdiction is responsible for ensuring that other areas

of core capability (generally categorized as those

involving fire services, environment, public safety,

specialized scientific community, public health,

emergency health and emergency medical services,

military and defense, security intelligence and law

enforcement) are consulted and engaged, and their

roles, responsibilities and capabilities are recognized

through the implementation of the Strategy as required.

The SOREM CBRNE Sub-Working Group supports the

Strategy’s implementation through monitoring of the

action plan and by undertaking initiatives within the

plan to enhance cross-sectoral coordination on CBRNE

issues. Each member of the CBRNE Sub-Working Group

is responsible for engaging and informing their

respective, jurisdiction-specific constituents as the

Strategy is implemented. Public Safety Canada provides

Secretariat services for the CBRNE Sub-Working Group.

The governance of the Strategy by these various bodies

is outlined in Figure 1.

To support an incremental approach and inform leaders

in the decision-making process, the CBRNE Sub-Working

Group, on a yearly basis, recommends to SOREM a list of

tasks to be addressed from the Action Plan. SOREM will

approve those tasks to be completed, as well as identify

the lead organization for each task.

The Action Plan encourages and guides the development

of jurisdiction-specific CBRNE action plans. These

jurisdictional action plans are complementary to the

national Action Plan. Public Safety Canada is

accountable for coordinating the activities of federal

departments and agencies in support of this Strategy.

CBRNE resilience in Canada is enhanced through all

levels of government working together. It is expected

that the collaborative approach established in the

Strategy remains evergreen and strengthens coherency

of action among all levels of government and

contributors.

Governments and contributors to the Strategy need to

be resilient and have competent, robust business

continuity plans to the extent practicable. Aligning

CBRNE planning with business continuity planning

ensures the continued availability of critical services and

assets during the response to and recovery from CBRNE

events.

Governments and contributors to the Strategy recognize

the relevance and applicability of cooperative

agreements, commitments and conventions that may be

in place between the various governments, across

jurisdictions and internationally.


Strategic Objectives

Federal / provincial / territorial contributors identified

five strategic objectives as fundamental to developing

Canadian resilience to CBRNE events. These objectives

are to be interpreted as comprehensive and balanced

across all four components of Emergency Management,

and must be integrated in an ongoing fashion. Through

these objectives, existing plans, programs, and initiatives

are leveraged, and new ones coordinated. Efforts to

realize these strategic objectives will assist contributors

in achieving long term resilient and sustainable

capability with respect to CBRNE.

F/P/T Ministers Responsiblefor Emergency Management

F/P/T Deputy Ministers Responsiblefor Emergency Management

Senior Officials Responsiblefor Emergency Management (SOREM)

ResponseWorking Group

RecoveryWorking Group

SOREM CBRNESub-Working Group

Jurisdiction-SpecificCBRNE Committee

(F/P/T/M)

Public Safety Canada(Secretariat)

Prevention / MitigationWorking Group

AcademicCommunity

Industry ScientificCommunity

First ResponderCommunity

Non-GovernmentalOrganizations

Others

PreparednessWorking Group

FederalDepartments

Figure 1: Governance of the Strategy and Action Plan


1. Provide leadership forcoordinated policy and programdevelopment

Contributors have recognized the need to clarify and

strengthen leadership roles, and to coordinate

contributions, in the development of CBRNE policies and

programs. As investments in CBRNE fluctuate in

response to changing risk, a clear understanding of the

roles, responsibilities and contributions is necessary with

respect to:

� each type of CBRNE event, whether it is chemical,

biological, radiological, nuclear, and/or explosives in

nature;

� each phase of an event, from pre-event national

security and mitigation activities, to post-event

investigation, consequence management and

recovery activities;

� each contributor, including all levels of government,

industry, and the academic and scientific

communities.

The relationships between various levels of government,

and with international partners need to confirmed, and

in some cases, developed.

Clearly defined roles, responsibilities and contributions,

appropriate representation, and the networking of

contributors with their colleagues will guide the

development and sustainment of CBRNE policies and

programs. In this way, contributors are coordinated,

optimizing their impact, thereby fostering and promoting

CBRNE resilience.

2. Integrate CBRNE intoan all-hazards risk managementapproach

Policy and program decisions with respect to CBRNE

should be made in the context of a wider all-hazards risk

management approach. In a complex, modern society,

there are numerous potential sources of risk, many of

which vary over space and over time. The risk posed by

CBRNE must be evaluated together with the risk posed

by other hazards, be they human-induced or natural.

Risks may be current or emerging. Robust hazard,

vulnerability and risk assessment methodologies must

be used to generate a coherent understanding of the

risks for all hazards, including CBRNE.

Once the risks from all sources are clearly understood,

capability-based planning can be used to reduce the risk

for CBRNE. This robust approach to risk management

will ensure that CBRNE policy and program decisions are

evidence-based, which increases resilience through

targeting limited resources to areas of highest priority.

3. Use capability-based planning toinform policy, program andinvestment decisions

Capability-based planning is a structured planning

process that informs policy and program decisions,

including investment decisions. It is has three

fundamental components:

� a sound understanding of the threats and hazards;

� a robust risk assessment of those threats and

hazards (imminent as well as emerging); and

� determining capability needs through a repeatable

and thorough capability analysis process.

12 See definition of “Interoperability” in the Glossary.


By recognizing and applying the principles of capability-

based planning, contributors will develop a scalable,

optimal, and sustainable multi-agency CBRNE capability

that respects jurisdictional authorities.

The outcomes of capability-based planning, which

include effective planning, integrated concepts of

operation and functional interoperability, are key

components of CBRNE resilience.

4. Build an effective andinteroperable workforce

An effective workforce must be developed, resourced,

and sustained in order to contribute to CBRNE resilience.

It is this workforce which will undertake the

prevention/mitigation, preparedness, response and

recovery activities required to effectively address CBRNE

threats.

Interoperability12 is one of the key characteristics of an

effective workforce. A workforce must achieve

interoperability horizontally across training, tools,

equipment, technology, and procedures. These are the

elements to creating technical and operational /

functional interoperability, both of which are required.

People are the core of the effective workforce. They must

be developed and supported by a modern, dynamic and

responsive training infrastructure, according to their

specialized roles, responsibilities, and contributions.

Access to appropriate tools and equipment, according to

capability levels, is also required. This includes adopting

new technologies where appropriate.

Consistent and interoperable procedures and plans, such

as integrated Concepts of Operation, must be developed

and used.

Together, effective and interoperable people, tools,

equipment, technology and procedures ensure that the

desired level of resilience is reached.

In light of the special characteristics which define

CBRNE, such as the criminal or terrorist nature of the

event, the risk of responders being specifically targeted,

and the hazards associated with a response, a priority

focus on safety is critical for the workforce to contribute

fully to CBRNE resilience.

5. Optimize information andknowledge management

Effective information and knowledge management are

essential to developing CBRNE resilience. To facilitate

this, systems and mechanisms must be confirmed or

created. These systems must address the needs of all

contributors, from the exchange of intelligence in a

secure and timely fashion, to expert reach-back for first

responders during a CBRNE event.

The implications of a CBRNE event on society could be

far-reaching. For example, detonation of a radiological

dispersal device (such as a “dirty bomb”) could

contaminate large sections of a city, with tremendous

impact not only on the local economy and environment,

but also on the perceptions of safety and confidence

held by the public. Developing community-level

preparedness, including building and maintaining public

confidence with respect to CBRNE, are important

aspects of community-level resilience. Recovery

strategies are needed to address the potentially far-

reaching psycho-social implications of a CBRNE event.

These systems and strategies will increase coordination,

reduce duplication, and ensure effective communication.

Through information and knowledge management, both

contributors and the public will be informed to the


greatest possible extent, allowing them to take

appropriate action as events require. This builds the

resilience of society as a whole against CBRNE.

Implementation

While the Strategy provides a strategic policy framework

for all levels of government, it does not attempt to

catalogue and assign all responsibilities and actions

required. Implementation of the Strategy and specific

responsibilities are described in the Action Plan, which

forms the basis for resource allocation by respective

organizations.

The Action Plan, which is an integral part of the Strategy,

sets out actions and timelines for CBRNE programs and

activities over a five-year period. The Action Plan is

based on the five strategic objectives identified in this

Strategy as being core to developing CBRNE resilience.

All levels of government work to form, understand,

implement and exercise the Action Plan. Efforts in

support of the Action Plan identify and strengthen the

capabilities across Canada to prevent / mitigate, prepare

for, respond to, and recover from CBRNE events.

To be effective, the Strategy must be backed by

appropriate commitment, adequate plans, arrangements,

instruments and capabilities at all levels of government

and by all contributors, which are exercised regularly.

Plans must recognize the multi-jurisdictional nature of

CBRNE events and seek an appropriate level of

coordination.

The success of the Strategy will be measured by the

deliverables and timelines described in the Action Plan.

The Strategy is successful when the performance

indicators set out in the Action Plan are met. Going

forward, future investment in CBRNE in Canada must

support the Strategy and further the items identified in

the Action Plan.

An ongoing and coordinated interagency

communications plan will convey achievement on the

Strategy, toward enhancing awareness and bolstering

public confidence with respect to CBRNE threats and

risks.

Review

All levels of government are working together to

monitor the implementation of the Strategy and support

the assessment of programs and activities targeted at

enhancing CBRNE resilience in Canada. It is expected

that the collaborative approach established in the

Strategy will remain evergreen and strengthen

coherency of action among all levels of government and

contributors.

The Strategy will be reviewed and revised every five

years, or more frequently if necessary. The Action Plan

will be reviewed and updated at least annually as

approved by SOREM.


Glossary

All-Hazards ApproachAn approach that recognizes that the actions required to mitigate the effects of emergencies are essentially the

same, irrespective of the nature of the event, thereby permitting an optimization of scarce planning, response and

support resources. The intention of all-hazards generic planning is to employ generic methodologies, modified as

necessary by particular circumstances.

All hazards incorporates natural and man-made hazards and threats, including traditional emergency

management events such as flooding and industrial accidents; as well as national security events such as acts of

terrorism; and cyber events. (Source: Federal Emergency Management Response Plan, 2009)

Capabilities-Based PlanningAn approach involved in planning, prioritizing and choosing response capabilities that are flexible and

interchangeable, based on a detailed assessment of identified threats and risks. Capabilities-Based Planning

answers the following question: Do we have the right mix of training, organizations, plans, people, leadership and

management, equipment, and facilities to perform a required emergency task?

Chemical, Biological, Radiological and Nuclear (CBRN)See CBRNE below.

Chemical, Biological, Radiological, Nuclear and Explosives (CBRNE)The expansion of the term CBRN to incorporate certain high-yield explosives (E) into the broader term CBRNE

signifies the new reality of this threat due to the weaponization of hazardous and dangerous goods. For the

purposes of this Strategy, the term CBRNE has been adopted as it represents the science and practice worldwide

in the current threat environment. See CBRNE Event below.

CBRNE EventA CBRNE event involves a potential, perceived, or actual act with chemical, biological, radiological, nuclear, or

explosive materials that are, or are suspected to be, used in a deliberate or intentional way to cause harm. These

acts are considered criminal acts and are often acts of terrorism, as defined by the Criminal Code of Canada and

the Security Offences Act. CBRNE events have additional dimensions that will complicate all aspects of emergency

management. They are intended to maximize fear and disruption and may have elements designed to direct harm

at first responders and first receivers, which in the case of specialists may have significant consequences on the

capability to deal with the event itself. Further, deliberate acts will require the event scenes, which may be large

and dispersed, to be managed as potential crime scenes, which creates specialized challenges in already

complicated situations.


In most instances, in the absence of clear evidence to suggest an intentional event, the response to a CBRNE event

commences as a HazMat response. HazMat is a core capability that is required to respond to a CBRNE event,

along with other capabilities (such as investigation and tactical Emergency Medical Services).

CBRNE MaterialsChemical, biological, radiological, nuclear material or certain explosives used deliberately or intentionally by

terrorists or criminals to cause harm.

Complex EmergenciesEmergencies rendered unusually complex due to one or more of the following types of factors: multi-agency or

multi-jurisdictional response; duration; complexity with respect to the type of event; simultaneous events; severity

of damage; heavy loss of life; requirement for specialized resources; limitation of available and trained resources;

potential criminal or terrorist acts; potential of indiscriminate targeting; and potential of responders being

targeted, etc.

Concept of OperationsA concise description of how an organization is to operate in order to achieve specific goals. (Source: Emergency

and Crisis Communication Vocabulary, Terminology Bulletin 252, 2003)

ContributorsContributors include all levels of government; first responders; first receivers; healthcare and public health

professionals; hospitals; coroners, the intelligence community; specialized resources, including scientific and Urban

Search and Rescue (USAR) resources; the military; law-enforcement agencies; non-governmental agencies; private

sector contributors, and the academic community.

DisasterEssentially a social phenomenon that results when a hazard intersects with a vulnerable community in a way that

exceeds or overwhelms the community’s ability to cope and may cause serious harm to the safety, health, welfare,

property or environment of people; may be triggered by a naturally occurring phenomenon which has its origins

within the geophysical or biological environment or by human action or error, whether malicious or unintentional,

including technological failures, accidents and terrorist acts. (Source: An Emergency Management Framework for

Canada, 2011)

DomesticOf, or relating to, a country’s internal affairs.

EmergencyA present or imminent event that requires prompt coordination of actions concerning persons or property to

protect the health, safety or welfare of people, or to limit damage to property or the environment. (Source: An

Emergency Management Framework for Canada, 2011)


Emergency ManagementThe management of emergencies concerning all-hazards, including all activities and risk management measures

related to prevention / mitigation, preparedness, response and recovery. Frequently this set of related activities is

referred to as the Four Components of Emergency Management. Emergency management is a shared

responsibility that builds a sustainable, prosperous and disaster-resilient society.

The Four Components of Emergency Management are:

1. Prevention/Mitigation: to eliminate or reduce the risks of disasters in order to protect lives, property, the

environment, and reduce economic disruption. Prevention/mitigation includes structural mitigative measures

(e.g. construction of floodways and dykes) and non-structural mitigative measures (e.g. building codes, land-

use planning, and insurance incentives). Prevention and mitigation may be considered independently or one

may include the other.

2. Preparedness: to be ready to respond to a disaster and manage its consequences through measures taken

prior to an event (for example emergency response plans, mutual assistance agreements, resource inventories

and training, equipment and exercise programs);

3. Response: to act during or immediately before or after a disaster to manage its consequences through, for

example, emergency public communication, search and rescue, emergency medical assistance and evacuation

to minimize suffering and losses associated with disasters; and

4. Recovery: to repair or restore conditions to an acceptable level through measures taken after a disaster, for

example return of evacuees, trauma counseling, reconstruction, economic impact studies and financial

assistance. There is a strong relationship between long-term sustainable recovery and prevention and

mitigation of future disasters. Recovery efforts should be conducted with a view towards disaster risk

reduction. (Source: An Emergency Management Framework for Canada, 2011)

First ReceiverA health care worker that assists the victims of a CBRNE event (including contagious individuals) after a potential

exposure, but prior to their admission to a hospital. Note: This assistance will usually be given at the first receiver’s

normal place of work (less often at the scene of the CBRNE event). (Source: CGSB-205.1/ CSA Z1610 Protection of

First Responders from Chemical, Biological, Radiological, and Nuclear (CBRN) Events)

First ResponderA trained and officially mandated responder involved in a response to a CBRNE event. Notes: (1) First receivers

could relocate in order to act as first responders. (2) Examples of first responders are police, firefighters, and

emergency medical service personnel. (Source: CGSB-205.1/ CSA Z1610 Protection of First Responders from

Chemical, Biological, Radiological, and Nuclear (CBRN) Events)


HazardA potentially damaging physical event, phenomenon or human activity that may cause the loss of life or injury,

property damage, social and economic disruption or environmental degradation. (Source: An Emergency

Management Framework for Canada, 2011)

HazMat / Hazardous Materials (Dangerous Goods)Any substance, or mixture of substances, having properties capable of harming people, property, or the

environment (Source: Emergency and Crisis Communication Vocabulary, Terminology Bulletin 252, 2003)

HazMat EventA HazMat event refers to an event caused by human error or natural or technological reasons. This could include

spills, accidental releases or leakages. These are generally referred to as Dangerous Goods (DG) or Hazardous

Materials (HazMat) events. An event involving hazardous materials can occur by accident, negligence or

subsequent to a natural occurrence, such as violent weather, or seismic activity. HazMat events are accidental, yet

due to their nature require a very precise and specialized response. A HazMat response capability is a core

capability required to respond to CBRNE events.

InteroperabilityInteroperability is both operational / functional and technical.

Operational / functional interoperability is the ability to work together effectively. Specifically, it is the ability of

different jurisdictions or disciplines to provide services to and accept services from other jurisdictions or disciplines

in a coordinated manner, and to use those services to operate more effectively together at an emergency. From a

practical perspective, operational interoperability means that personnel from different jurisdictions or services

perform as a team under a common command-and-control structure.

Technical interoperability is the ability to communicate and exchange information and to integrate equipment and

technical capabilities. It is the ability of systems to provide dynamic interactive information and data exchange

among command, control, and communications elements for planning, coordinating, integrating, and executing

response operations.

LocalOf, or relating to, a city, town, district, or community.


Non-governmental organizationA non-profit organization based on the interests of its members (i.e., individuals or institutions). It is not created

by a government, but it may work cooperatively with government. Such organizations serve a public purpose, not

a private benefit. Examples of non-governmental organizations include faith-based charity organizations and the

Canadian Red Cross. (Source: Federal Emergency Management Response Plan, 2009)

ResilienceThe capacity of a system, community or society to adapt to disturbances resulting from hazards by persevering,

recuperating or changing to reach and maintain an acceptable level of functioning. Resilient capacity is built

through a process of empowering citizens, responders, organizations, communities, governments, systems and

society overall to share the responsibility to keep hazards from becoming disasters. Resilience minimizes

vulnerability, dependence and susceptibility by creating or strengthening social and physical capacity in the

human and built-environment to cope with, adapt to, respond to, and recover and learn from disasters. (Source: An


RiskThe combination of the likelihood and the consequence of a specified hazard being realized; refers to the

vulnerability, proximity or exposure to hazards, which affects the likelihood of adverse impact. (Source: An


Risk-BasedThe concept that sound emergency management decision-making is based on an understanding and evaluation of

hazards, risks and vulnerabilities. (Source: An Emergency Management Framework for Canada, 2011)

Risk ManagementThe use of policies, practices and resources to analyze, assess and control risks to health, safety, environment and

the economy. (Source: An Emergency Management Framework for Canada, 2011)

SustainableA sustainable approach is one that meets the needs of the present without compromising the ability of future

generations to meet their own needs. (Source: An Emergency Management Framework for Canada, 2011)

SOREMSenior Officials Responsible for Emergency Management. SOREM is a committee comprised of senior officials

responsible for emergency management who represent the federal, provincial, and territorial governments. The

committee provides guidance and advice on enhancing emergency management in Canada through initiatives

which are reflective of the Four Components of Emergency Management: prevention / mitigation, preparedness,

response and recovery. The committee’s initiatives are supported by various working groups and sub-working

groups.


TerrorismThe definition of "terrorist activity" as set out in section 83.01(1) (a) and (b) of the Criminal Code of Canada.

ThreatThe presence of a hazard and an exposure pathway; threats may be natural or human-induced, either accidental or

intentional. (Source: An Emergency Management Framework for Canada, 2011)

VulnerabilityThe conditions determined by physical, social, economic and environmental factors or processes, which increase

the susceptibility of a community to the impact of hazards. It is a measure of how well prepared and equipped a

community is to minimize the impact of or cope with hazards. (Source: An Emergency Management Framework for

Canada, 2011)


Acronyms

BTWC ...................Biological and Toxin Weapons Conventions

CBRN ...................Chemical, Biological, Radiological and Nuclear

CBRNE .................Chemical, Biological, Radiological, Nuclear and Explosives

CRTI .....................CBRNE Research and Technology Initiative

CWC .....................Chemical Weapons Convention

EMS .....................Emergency Medical Services

F/P/T/M ................Federal, Provincial, Territorial, Municipal

FERP ...................Federal Emergency Response Plan

FNEP ...................Federal Nuclear Emergency Plan

G8 ........................Group of Eight

GHSI.....................Global Health Security Initiative

HazMat................Hazardous Materials

NATO....................North Atlantic Treaty Organization

NCTP ....................National Counter-Terrorism Plan

NERS ....................National Emergency Response System

NPT ......................Nuclear Non-Proliferation Treaty

S&T ......................Science and Technology

SOREM ................Senior Officials Responsible for Emergency Management

UN......................United Nations

USAR....................Urban Search and Rescue

WMD....................Weapons of Mass Destruction

cbrne strategy for canada

Documents

explosivesresilience

coordinated policy

program development

knowledge management

right of canada

capabilitybased planning

investment decisions

interoperable workforce